The Austrian Policy Towards Elementary Bilingual Education in Southern Carinthia and Its Changes Between 1958 and 1988

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The Austrian Policy Towards Elementary Bilingual Education in Southern Carinthia and Its Changes Between 1958 and 1988 TREATISES AND DOCUMENTS JOURNAL OF ETHNIC STUDIES Number 65, September 2011, pp. 88–113 MATJAŽ KLEMENČIČ The Austrian Policy towards Elementary Bilingual Education in Southern Carinthia and its Changes between 1958 and 1988 The article deals with the Austrian policy towards bilingual elementary education. After World War II Austria introduced compulsory elementary bilingual education within almost whole territory of Slovene indigenous settlement in southern Carinthia. Soon after the State Treaty for the Re-establishment of an Independent and Democratic Austria of 1955 was signed the German nationalists sharpened their demands that parents should decide on the language of education of their children. As a result of this pressure the compulsory bilingual elementary education was abolished in 1958. Author deals with the debates in Austrian parliament which led to the passage of new minority school law in 1959, which worsened the positions of Slovene minority. The second part of the article deals with debates and procedures when this law was changed again in 1980s. The changes did not achieve the aims of those who proposed them. The political circumstances after the fall of Berlin Wall and increased importance of Slovene language as one of the official languages of EU again increased the interest in Carinthia for bilingual education. Keywords: Carinthian Slovenes, ethnic/national minority, minority protection laws, bilingual education Avstrijska politika do osnovnošolskega dvojezičnega izobraževanja na južnem Koroškem in spremembe le- tega med letoma 1958 in 1988 Prispevek obravnava avstrijsko politiko do obveznega dvojezičnega šolstva na Koroškem. Po drugi svetovni vojni je Avstrija uvedla obvezno dvojezično šolstvo na skoraj celotnem območju avtohtone poselitve Slovencev na južnem Koroškem. Kmalu po podpisu Pogodbe o obnovi neodvisne in demokratične Avstrije leta 1955 so nemški nacionalistični krogi zaostrili zahteve, da bi o učnem jeziku svojih otrok odločali starši. Na njihov pritisk je koroška deželna politika leta 1958 odpravila obvezno dvojezično šolstvo. Avtor nato obravnava zakonodajne postopke v koroškem deželnem zboru in v avstrijskem parlamentu, ki so leta 1959 privedli do sprejema novega manjšinskega šolskega zakona, ki je slovenski manjšini zelo poslabšal že pridobljene pravice. V nadaljevanju je obravnavano spreminjanje tega zakona v 80. letih 20. st. Te spremembe pa namena predlagateljev niso dosegle. Spremenjene politične okoliščine po padcu berlinskega zidu in naraščanje pomena slovenščine kot enega uradnih jezikov v EU so povečale tudi zanimanje za dvojezično izobraževanje. Ključne besede: koroški Slovenci, etnične/narodne manjšine, manjšinska zaščitna zakonodaja, dvojezično izobraževanje Correspondence address: Matjaž Klemenčič, University of Maribor, Faculty of Arts, Department of History, Koroška cesta 160, 2000 Maribor, Slovenia, e-mail: [email protected]. ISSN 0354-0286 Print/ ISSN 1854-5181 Online - UDC 323.15.342.4(058) © Inštitut za narodnostna vprašanja (Ljubljana), http://www.inv.si RAZPRAVE IN GRADIVO REVIJA ZA NARODNOSTNA VPRAŠANJA Številka 65, september 2011, str. 88–113 1. Introduction 89 Bilingual education in southern Carinthia has always been the cause of conflicts between the German-speaking majority and the Slovene-speaking minority of the province and especially after 1848 when the Slovenes started to become politically aware of their interests as a modern European nation and these interests started to overlap with the interests of the Greater German nationalists (Berchtold 1967; Cvirn 1995, 73–82). These tensions were also caused by the fact that, until 1938, the bilingual utraquistic schools served primarily as a means to make children learn German as quickly as possible (Ude 1955; Hassler 1959; ÖRK 1989; Kurz 1990, 120; Oblak 1990). Even in 1934, there were 78 Slovenian- German bilingual utraquistic schools where they taught 12,027 children (Suppan 1983, 160). During the Nazi period the Slovene language completely disappeared from schools. After the World War II, with the introduction of compulsory bilingual elementary education in almost the entire bilingual region of Southern Carinthia Austria formally demonstrated a positive political will to tackle the old German-Slovene contradictions. The State Treaty for the Re-establishment of an Independent and Democratic Austria (also known as the Austrian State Treaty – AST) of 1955, in the second paragraph of Article 7 states that Austrian citizens of Slovene and Croatian national minorities in Carinthia, Burgenland and Styria are “entitled to elementary instruction in the Slovene or Croat language and to a proportional number of their own secondary schools” (BGBl 1955, 727). However, in the field of minority protection Austrian legal practice did not follow the requirements of the AST (Pleterski 1960, 7–99; Stuhlpfarrer 2004, 39–58). The reason for this, especially in the field of education, was the fact that almost no denazification took place in Carinthia. The provincial governor of Carinthia Hans Piesch in 1946 stated that if the denazification were to be completed in the field of education in Carinthia, they would have to close all schools (Knight 1998, 531–558; Tributsch 2005, 81–83; Wakounig 2008, 172–177). 2. The Abolition of Compulsory Bilingual Elementary Education Opponents of bilingual education loudly demanded from 1949 onwards the introduction of the so-called parental right, i.e., that the parents would have the right to decide on the language of instruction of their children (Malle 1998, 511- 513). Individual protests of German nationalists against bilingual education took place already in 1946 (Fräss-Ehrfeld 2005, 123). Until 1956 only the Socialist 65 / 2011 TREATISES AND DOCUMENTS JOURNAL OF ETHNIC STUDIES MATJAŽ KLEMENČIČ The Austrian Policy towards Elementary Bilingual Education in Souther... 90 Party of Austria [Sozialistische Partei Österreichs – SPÖ] rejected such changes and then – out of fear of losing votes at the elections – itself succumbed to the demands of the German nationalists (Zorn 1976, 127–128; Nećak 1985, 100–101). Opponents of bilingual elementary education in Southern Carinthia organized school strikes and forced both government parties, i.e., the SPÖ and the Austrian People’s Party [Österreichische Volkspartei – ÖVP] to file a proposal of new bill on bilingual elementary education in Carinthia on 11 September 1957. According to this proposal minority education in the elementary schools [Volkschule] and in school grades five through eight Hauptschule[ ] would in accordance with the article 7 of AST fall under the jurisdiction of federal authorities, while the establishment of the school networks would fall under the jurisdiction of provincial authorities. The proposal also foresaw the establishment of a secondary school with Slovene as the language of education and additional education for teachers who taught in the Slovene language, and it regulated the optional teaching of Slovene language in compulsory elementary education and in secondary schools. The proposal dealt with the supervision of these schools. It defined members of the Slovene national minority as those Austrian citizens who recognized themselves as members of minority. The recognition of the membership of minority was a matter which officials could neither deny nor review in any way. Both federal and provincial legislators were to make sure that no pupil would attend school in the Slovene language or be taught Slovene as a compulsory subject without the consent or expressed will of his or her legal representatives. On the other hand, in accordance with this proposal all pupils in the linguistically mixed area of Carinthia – if their legal representatives so requested – would receive instruction in one of the schools in which the education took place only in the Slovene language, or in schools in which instruction was in German and Slovene, or in schools with German as the language of education in which classes with Slovene language of education would be organized. In schools with Slovene as the language of instruction German would be taught as a mandatory subject for six hours a week. In schools with Slovene and German as the languages of instruction, in the first three grades the language of instruction was to be to quantitatively the same in Slovene and in German. From the fourth grade onwards this instruction would take place only in German, while Slovene would be taught for three hours a week. The proposal also provided for additional training for teachers who taught in Slovene, and also the termination of the validity of the decree on compulsory bilingual elementary education of 3 October 1945 (SP 1957, 201–300). German nationalists stepped up their efforts to abolish compulsory bilingual elementary education in southern Carinthia, in particular after the beginning of May 1957, when the Minister of Education Heinrich Drimmel sent a decree RAZPRAVE IN GRADIVO REVIJA ZA NARODNOSTNA VPRAŠANJA 65 / 2011 MATJAŽ KLEMENČIČ Avstrijska politika do osnovnošolskega dvojezičnega izobraževanja na... establishing the Slovene Federal High School in Klagenfurt/Celovec to the 91 Provincial School Council of Carinthia (Verordnungsblatt 1957, 1). In order to somewhat calm passions, two deputies to the Austrian parliament, Walther Weissmann (ÖVP) and Max Neugebauer (SPÖ), on 20 November 1957 proposed to the Austrian Parliament a new draft of the law on bilingual education in Carinthia, and this was discussed in the Subcommittee on Minority
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